J6/3 
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UC-NRLF 


*C    21    572 


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EXCHANGE 


EXCHANGE 
f     \ls        |AN   4    1916 


uni v  h k v i r V 


i 


'  P 


REPORT 


OF 


MR.  JOHN  F.  WALLACE 


TO   THE 


Committee  on  Railway  Tefminals 


OF   THE 


CITY  COUNCIL  OF  CHICAGO 


BARNARD    &     MILLER    PRINT,    CHICAGO. 


REPORT 


OF 


MR.  JOHN  F.  WALLACE 


TO  THE 


Committee  on  Railway  Terminals 


OF  THE 


CITY  COUNCIL  OF  CHICAGO 


CHICAGO  TERMINALS 


INTRODUCTION 


In  the  consideration  of  the  Railway  Terminal  situation  at  Chi- 
cago it  becomes  necessary  at  the  outset,  for  the  purpose  of  sim- 
plification, to  separate  it  into  two  parts — passenger  and  freight. 
Each  part  should  be  considered  with  reference  to  the  needs  of 
the  community,  to  its  own  needs,  its  relation  to  commercial  re- 
quirements; also  the  relationship  of  each  terminal  to  others,  to 
the  traffic  of  the  streets  leading  to  it,  and  to  the  distributing  sys- 
tems of  transportation  within  the  city  and  its  suburbs. 

These  phases  of  the  problem  are  of  intimate  concern  to  all 
interested  in  the  welfare  of  Chicago,  for  unless  each  factor  neces- 
sary to  the  successful  use  of  a  railway  terminal  receives  proper 
consideration,  the  result  is  unsatisfactory  to  both  the  public  and 
the  railroads.  No  one  factor  is  of  greater  importance  than  that 
of  providing  proper  facilities  for  carrying  the  constantly  increas- 
ing volume  of  street  traffic. 

It  is,  therefore,  not  sufficient,  in  the  study  of  this  question,  to 
consider  the  requirements  of  the  railways  alone,  for  the  relation- 
ship of  railway  terminals  to  the  city,  in  meeting  conveniently  the 
necessities  of  the  people  and  in  facilitating  the  growth  of  the  city 
along  lines  productive  of  greatest  ultimate  development,  is  of  the 
highest  consequence. 

I  have  endeavored,  in  the  brief  time  at  my  disposal  for  the 
consideration  of  a  question  so  complicated,  involving  so  many  large 
interests,  to  outline  what  appears  to  me  to  be  the  controlling  con- 
ditions and  the  course  of  action  that  may  consistently  be  taken 
at  this  time  to  meet  the  immediate  necessities  of  the  concrete  sit- 
uation your  Committee  now  has  before  it  for  consideration. 

328866 


PASSENGER  TERMINALS. 

The  need  for  a  general  change  in  the  facilities  now  nsed  in 
the  passenger  and  freight  bnsiness  of  most  of  the  railways  of  Chi- 
cago is  apparent  to  the  most  casual  observer.  The  traffic  of  the 
railways  is  constantly  outgrowing  their  facilities  for  carrying  on 
the  bnsiness.  Bnt  it  is  not  the  railways  alone  that  are  confronted 
with  a  problem  of  transportation,  for  likewise  the  traffic  of  the 
city  has  outgrown  the  capacity  of  the  streets  in  the  central  busi- 
ness district,  both  as  to  the  use  of  the  sidewalks  and  of  the  road- 
ways. 

It  is  therefore  necessary  in  working  out  this  problem  to  con- 
sider it  as  a  whole  and  to  endeavor  so  to  balance  the  functions  of 
the  different  parts,  that  when  readjusted  the  result  will  be  a  con- 
venient, efficient  and  economical  system  of  transportation  for  both 
the  city  and  the  railways,  designed  to  meet  not  only  the  pressing 
needs  of  today,  but  of  the  future;  to  the  end  that  expansion  of 
the  city  and  of  the  railways  may  be  along  lines  of  systematic 
development. 

The  essential  need  of  the  city  at  this  time  is  that  a  breadth  of 
view  in  the  treatment  of  its  transportation  problem  may  prevail, 
to  insure  an  opportunity  for  adequate  development  of  all  the  in- 
terests concerned. 

The  business  district  of  the  city,  represented  by  the  area  on 
the  South  Side,  north  of  12th  Street,  substantially  one  mile  square, 
is  not  only  hemmed  in  on  all  sides  by  the  railways,  but  is  pene- 
trated for  about  one-half  of  this  distance  by  railway  extensions 
inwardly  from  the  south,  so  that  the  area  free  from  railway  oc- 
cupation is  limited  to  the  central  district,  north  of  Van  Buren 
Street,  and  is  in  effect  about  one-quarter  of  a  square  mile.  Within 
this  restricted  area  lie  the  active  centers  of  the  financial  district, 
the  retail  district,  the  wholesale  district,  the  public  buildings  of 


the  National  Government  and  of  the  city  and  county,  the  prin- 
cipal hotels  and  the  great  office  buildings  that  centralize  the  com- 
mercial activities  of  the  city.  Within  this  narrow  district  the 
surface  traction  lines  and  the  elevated  railways  of  the  city  focus 
their  entire  traffic 

As  a  result  of  this  varied  and  intense  concentration  of  busi- 
ness activity,  within  an  area  representing  l/764th  of  the  total 
area  of  the  city,  an  undue  congestion  of  the  streets  has  been 
brought  about  during  the  business  hours  of  the  day — a  condition 
so  urgently  demanding  relief  that  immediate  action  toward  that 
end  is  of  vital  importance.  This  necessity  may  be  realized  more 
clearly  when  it  is  considered  that  while  the  most  modern  build- 
ings of  the  district  are  being  constructed  upwards  of  twenty  stories 
in  height,  the  average  height  of  all  the  buildings  in  the  district 
is  less  than  eight  stories.  The  significance  of  this  comparison  is 
to  be  found  in  the  fact  that  while  the  district  is  as  yet  less  than 
half  built  up,  the  conditions  of  traffic  upon  the  streets  are  such  as 
to  seriously  impair  the  prospects  of  further  development 

Of  the  various  plans  that  have  been  suggested  for  Union  Sta- 
tion Passenger  Terminals,  none  would  eventually  so  effectually 
bar  the  expansion  of  the  business  district  of  the  city  southward 
as  the  proposal  to  locate  such  terminals  at  12th  Street,  occupying 
all  the  space  between  State  Street  and  the  river. 

The  outlet  for  expansion  of  the  business  district  southward 
of  12th  Street  should  be  kept  open  between  Michigan  Avenue  and 
the  river  to  the  utmost  extent  possible. 

Looking  now  to  the  West  Side,  we  find  that  from  12th  Street 
north  to  Madison  Street  the  railways  are  limited  to  a  narrow  strip 
of  land  lying  between  Canal  Street  and  the  river,  with  tracks  so 
much  below  the  grade  of  the  city  streets  as  not  to  interfere  with 
all  the  east  and  west  streets  being  carried  over  the  railway  prop- 
erty on  viaducts  the  full  width  of  the  streets,  and  of  easy  grades. 


6 

It  may  therefore  be  proper  to  leave  this  railway  strip  to  such 
intensive  development  as  the  railways  deem  advantageous  to 
make. 

From  Canal  Street  westward  to  Western  Avenue,  a  distance 
of  2\  miles,  and  from  12th  Street  northward  to  Madison  Street, 
a  distance  of  one  mile,  the  West  Side  of  the  city  has  an  area  of 
2£  square  miles  free  from  railway  tracks,  which  offers  great  op- 
portunity for  industrial  and  commercial  development. 

To  the  northward  the  railways  are  substantially  confined  to 
a  strip  along  the  river  and  its  north  branch,  leaving  for  business 
development  on  the  North  Side  an  area  extending  from  Kinzie 
Street  to  North  Avenue,  1£  miles,  and  from  the  river  to  the  lake, 
1|  miles,  equaling  2.25  square  miles. 

As  a  result  of  a  study  of  existing  conditions,  it  is  self-evident 
that  the  principal  thoroughfares  connecting  the  central  district 
witii  the  north,  south  and  west  sides  of  the  city  should  remain 
open  and  unobstructed,  and  provision  be  made  for  the  widening 
of  the  more  important  ones  as  future  necessities  may  require. 

The  railway  approaches  to  the  City  of  Chicago  are  along  seven 
different  routes,  as  follows : 

i        1.     The  Illinois  Central  right-of-way  along  the  Lake 
Front; 

2.  The  Lake  Shore-Rock  Island  right-  of  -way  parallel 

to  Clark  Street; 

3.  The  Pennsylvania-Western  Indiana   right-of-way 

between  Stewart  avenue  and  Canal  street; 

4.  The  Illinois  Central-Santa  Fe-Alton  right-of-way 

parallel  to  Archer  avenue; 

5.  The  Burlington-North  Western-Baltimore  &  Ohio 

right-of-way  parallel  to  Sixteenth  street; 

6.  The  St.  Paul-Pan  Handle-North  Western  right-of- 

way  parallel  to  Kinzie  street; 

7.  The  North  Western  right-of-way  parallel  to  Mil- 

waukee avenue. 


Of  these  seven,  four  are  east  and  south  of  the  river,  while 
three  are  north  and  west  of  the  river. 

There  are  at  the  present  time  six  Railway  Passenger  Ter- 
minals in  the  City;  namely,  the  North  Western  Station,  the  Union 
Station,  the  La  Salle  Street  Station,  the  Grand  Central  Station, 
the  Dearborn  Station  and  the  Central  Station.  These  stations 
accommodate  railroads  as  follows: 


Northwestern : 
Union: 


La   Salle : 


Grand  Central: 


Dearborn: 


Central : 


Total: 


1  road: 
5  roads 


4  roads 


4  roads 


8  roads 


4  roads 


26  roads. 


Chicago  &  Northwestern ; 

Chicago  &  Alton, 
Chi.  Bur.  &  Quiney, 
Chi.  Mil.  &  St.  Paul, 
Pitts.  Cin.  Chi.  &  St.  Louis, 
Pitts.  Ft.  Wayne  &  Chi.; 

Chi.  Indiana  &  Sou., 
Chi.  Rock  Island  &  Pac, 
Lake  Shore  &  Mich.  Sou., 
New  York,  Chi.  &  St.  Louis 

Baltimore  &  Ohio, 
Bait.  &  Ohio  Chi.  Term., 
Chicago  Great  Western, 
Pere  Marquette ; 

Atch.  Top.  &  Santa  Fe, 
Chesapeake  &  Ohio, 
Chicago  &  East.  111., 
Chicago  &  Erie, 
Chicago  &  West.  Ind. 
Chi.  Ind.  &  Louisville, 
Grand  Trunk, 
Wabash ; 

Cleve.  Cin.  Chi.  &  St.  Louis; 
Michigan  Central, 
Minn.  St.  Paul  &  S.  Ste.  M., 
Illinois  Central. 


The   North   Western   Station,   fronting   south    on   Madison 
Street,  occupies  the  entire  block  between  Canal  Street  and  Clinton 


8 

Street.  It  has  a  width  of  320  feet,  and  its  length,  including  head 
house  and  train  shed,  is  1,124  feet.  It  is  a  new  and  thoroughly- 
modern  structure  of  most  substantial  fireproof  construction,  with 
steel  frame  and  granite  exterior  of  imposing  design.  The  interior 
of  polished  marble  and  tile  is  exceedingly  handsome  in  the  propor- 
tions, arrangement  and  finish  of  the  waiting  rooms,  stairways 
and  concourse.  The  waiting  rooms,  with  their  appurtenances  and 
appointments,  are  large,  complete  and  well  arranged,  and  the  ven- 
tilating, heating  and  lighting  arrangements  are  quite  satisfactory. 
Every  facility  for  the  comfort  and  convenience  of  passengers  has 
been  carefully  planned,  and  the  quickness  and  ease  with  which 
tickets  can  be  purchased  and  baggage  checked  is  admirable.  The 
space  provided  for  the  movement  of  passengers  to  and  from  trains 
is  ample  and  the  entrances  and  exits  of  the  train  platforms  well 
designed  for  handling  large  crowds. 

The  train  shed  is  on  an  upper  level,  18  feet  above  the  street 
It  has  16  stub  tracks,  with  six  main  line  elevated  approach  tracks. 
The  station  was  opened  for  service  June  4,  1911 ;  it  has  capacity 
for  a  large  increase  over  the  business  now  being  handled;  its  cost 
was  $25,000,000,  and  it  should  adequately  meet  the  requirements 
of  traffic  for  many  years. 

The  Union  Station,  fronting  west  on  Canal  Street,  between 
Monroe  and  Adams  Streets,  was  opened  for  service  April  4,  1881. 
The  Station  building  is  of  ordinary  brick  construction,  with 
wooden  floors,  partitions  and  stairways.  The  waiting-rooms  are 
at  the  street  level,  and  the  train  concourse  is  at  the  track  level. 

While  designed  as  a  through  station  it  is  used  as  a  double 
stub  station,  the  trains  of  the  Pennsylvania,  Burlington  and  Alton 
roads  arriving  and  departing  at  the  south  end,  while  the  trains  of 
the  Si  Paul  and  the  Pan  Handle  roads  arrive  and  depart  at  the 
north  end. 


9 

The  traffic  of  the  roads  has  entirely  outgrown  the  capacity  of 
the  station,  and  the  accommodations  for  the  passengers  have  be- 
come wholly  inadequate. 

The  La  Salle  Street  Station,  fronting  north  on  Van  Buren 
Street,  occupies  the  entire  block  between  Sherman  and  La  Salle 
Streets,  and  was  opened  for  service  July  1,  1903.  The  entire 
structure  is  of  modern  steel  frame,  fireproof  construction,  hand- 
somely furnished,  with  complete  appointments  conveniently  ar- 
ranged for  the  accommodation  of  passengers.  The  train  shed, 
waiting  rooms  and  passenger  concourse  are  on  an  upper  level, 
above  the  street. 

There  are  eleven  stub  tracks,  with  four  approach  tracks. 

The  Grand  Central  Station,  fronting  north  on  Harrison 
Street,  was  opened  for  service  December  10,  1890.  It  has  a  width 
of  235  feet  and  its  length,  including  head  house  and  train  shed,  is 
700  feet.  The  waiting-rooms,  concourse  and  tracks  are  at  the 
street  level. 

The  Station  building  is  of  ordinary  stone  and  brick  construc- 
tion; the  appointments  are  well  arranged,  complete,  attractive, 
and  ample  for  the  accommodation  of  passengers.  The  train  shed 
has  eight  stub  tracks,  with  two  approach  tracks. 

The  Dearborn  Station,  fronting  north  on  Polk  Street,  occu- 
pies the  entire  block  between  Federal  Street  and  Plymouth  Court, 
and  was  opened  for  service  May  8,  1885.  It  has  a  width  of  213 
feet  and  its  length,  including  head  house  and  train  shed,  is  643 
feet.    The  waiting  rooms,  concourse  and  tracks  are  at  street  level. 

The  station  building  is  of  substantial  brick  construction;  the 
waiting-rooms  and  appointments  are  small  and  inadequate  for 
the  service.  The  train  shed  has  ten  stub  tracks,  with  four  ap- 
proach tracks. 

All  of  the  station  tracks  are  intersected  at  grade  by  Taylor 
Street,  for  which  an  opening  40  feet  wide  has  to  be  maintained 


10 

across  the  tracks  for  the  movement  of  street  traffic.  This  open- 
ing necessitates  the  cutting  and  separation  of  trains  during  the 
time  they  are  standing  in  the  station,  whenever  they  exceed  680 
feet,  or  about  ten  cars,  in  length. 

This  station  is  the  most  congested  of  any  in  the  city;  its  facil- 
ities are  limited;  is  not  well  located,  and  access  to  it  is  through 
narrow  and  crowded  streets. 

The  Central  Station,  fronting  north  on  Grant  Park,  was 
opened  for  service  April  17,  1893. 

It  is  a  steel  frame,  stone  and  brick  structure,  of  fireproof  con- 
struction, having  a  width  of  215  feet,  and  its  length,  including 
head  house  and  train  shed,  is  815  feet.  The  train  shed  has  six 
tracks,  with  two  approach  tracks  at  the  south  end,  a  connection 
with  the  St.  Charles  Air  Line  and  two  switching  leads  at  the  north 
end. 

The  waiting-rooms  are  on  an  upper  level,  18  feet  above  the 
street,  and  the  tracks  run  through  the  station  at  street  level.  Ac- 
cess to  the  trains  is  by  a  subway  under  the  station  tracks,  or  by 
stairs  descending  from  the  waiting-rooms.  It  was  designed  as  a 
through  station,  to  give  the  freest  and  safest  possible  movement 
of  trains  and  passengers. 

The  operation  of  its  train  service  at  the  station  is  ideal  in 
its  efficiency,  but  objection  on  the  part  of  the  passengers  to  climb- 
ing up  and  descending  stairs  or  of  using  the  subway  was  so  great 
that  they  have  practically  been  abandoned,  and  an  emergency 
opening  across  the  tracks  at.  grade  has  been  used  for  many  years 
by  passengers  going  to  and  from  trains. 

Under  an  agreement  between  the  South  Park  Commissioners 
and  the  Illinois  Central  Company,  the  station  is  to  be  torn  down 
and  the  site  vacated  for  park  purposes. 

It  will  be  seen  from  the  foregoing  review  that  of  the  five  older 
terminal  passenger  stations  now  in  use,  three,  the  Union  Station, 


11 

the  Illinois  Central  Station  and  the  Dearborn  Station,  have  served 
their  purpose,  and  must  soon  be  replaced  with  more  commodious 
structures. 

The  La  Salle  Street  Station,  by  the  growth  of  business,  will 
require  enlargement  or  replacement  within  the  next  ten  years. 

The  Grand  Central  Station,  while  admirably  arranged,  is 
badly  located,  with  a  drawbridge  across  the  Chicago  River  near 
its  train  entrance.  It  is  of  small  capacity.  The  interests  now 
owning  this  station  might  find  it  profitable  to  have  the  railroads 
using  it  secure  facilities  elsewhere,  and  dispose  of  this  property 
for  commercial  use. 

The  Union  Station  Company  has  submitted  plans  for  a  greatly 
enlarged  passenger  terminal  located  on  Canal  Street,  upon  sub- 
stantially the  same  site  as  to  train  shed  and  tracks  that  it  now 
occupies. 

The  Dearborn  Station  Company  has  not  as  yet  submitted 
plans  for  a  new  and  enlarged  passenger  terminal,  and  it  is  not 
known  what  improvements  it  has  in  contemplation. 

The  Illinois  Central,  owning  the  Central  Station,  has  plans 
in  course  of  preparation  for  a  new  and  greatly  enlarged  passen- 
ger terminal,  located  at  12th  Street  and  the  Lake  Front,  with  a 
possible  capacity,  on  two  levels,  for  taking  care  of  all  the  railroads 
on  the  South  Side  of  the  city,  now  using  stations  east  of  the  Chi- 
cago River. 

Measured  by  the  needs  of  the  community  alone,  at  least  two 
general  locations  for  railway  passenger  terminals  are  necessary 
to  meet  present  requirements.  One  on  the  South  Side  and  the 
other  on  the  West  Side,  between  Van  Buren  and  Madison  Streets 
adjacent  to  Canal  Street. 

It  should  be  remembered,  however,  that  the  railroads  now 
occupying  other  sites  have  vested  rights  in  the  present  holdings 
and  cannot  be  forced,  without  their  consent,  to  remove  or  rebuild 


12 

their  existing  terminals;  and  only  their  inability  to  take  care  of 
their  expanding  business  or  an  opportunity  to  increase  their  rev- 
enue or  reduce  their  operating  expenses  would  probably  induce 
them  to  abandon  their  present  locations. 

The  Lake  Shore  and  Eock  Island  Station  needs,  however,  spe- 
cial consideration,  from  the  standpoint  of  public  convenience,  on 
account  of  its  accessibility  to  and  from  the  business  center,  par- 
ticularly for  its  suburban  business.  The  preferable  location  of 
any  railroad  passenger  terminal  over  another  is  measured  by  its 
greater  convenience  to  and  accessibility  by  the  public. 

The  new  North  Western  Station,  at  Canal  and  Madison 
Streets,  having  been  designed  to  serve  the  purposes  of  one  road, 
another  station  to  provide  for  the  group  of  roads  now  established 
in  that  locality  and  using  the  old  Union  Station  becomes  a  neces- 
sity, as  much  from  the  standpoint  of  the  public  using  it  and  the 
business  interests  situated  in  the  heart  of  the  city,  as  from  a  rail- 
road point  of  view. 

Upon  the  South  Side  of  the  city  a  location  at  12th  Street  and 
Michigan  Avenue  Lake  Front  appears  to  be  one  that  can  be  suit- 
ably provided  on  property  available  only  for  railroad  uses,  and 
without  blocking  business  development  southward. 

Under  the  agreement  between  the  South  Park  Commission- 
ers and  the  Illinois  Central  Railroad,  executed  in  1912,  the  rail- 
road company  is  granted  additional  lands  on  the  lake  front,  which 
together  with  previous  holdings,  gives  it  a  site  for  its  new  passen- 
ger terminal  southward  from  12th  Street,  750  feet  in  width,  with 
an  extension  over  600  feet  in  width  nearly  to  31st  Street,  a  dis- 
tance of  about  two  miles.  Upon  this  site  it  is  possible  to  construct 
a  new  Central  Station  on  two  levels,  providing  for  30  stub  tracks 
on  each  level,  a  total  of  60  tracks,  all  available  for  through  pas- 
senger trains;  the  suburban  trains  to  be  run  through  the  station 
in  a  subway  on  an  independent  set  of  tracks. 


13 

The  widening  of  12th  Street  westward,  with  the  widening  and 
improvement  of  Michigan  Avenue  to  the  North  Side,  will  provide 
thoroughfares  of  exceptional  character  for  vehicle  traffic  from  the 
North,  the  West  and  the  South  Sides  of  the  city  to  a  passenger 
terminal  located  at  12th  Street  and  the  lake  front.  The  site  for 
the  station  at  the  south  end  of  Grant  Park  affords  splendid  oppor- 
tunity for  architectural  effect,  and  the  broad  right-of-way  south- 
ward for  several  miles  along  the  shore  of  the  lake,  having  a  ca- 
pacity for  20  main  tracks  as  far  as  51st  Street  and  15  tracks 
beyond,  with  no  street  crossings  at  grade,  makes  possible  an  ave- 
nue of  approach  to  the  city  for  the  passenger  trains  of  the  rail- 
ways from  the  East,  the  South  and  the  Southwest  that  exceeds  in 
capacity,  in  attractiveness  of  surroundings  and  in  advantage  of 
location,  any  railway  entrance  to  a  great  city. 

Nor  are  the  advantages  confined  to  the  railways  alone.  The 
grouping  of  the  passenger  facilities  of  the  railways  of  the  South 
Side  along  the  shore  of  the  lake  south  of  12th  Street  and  east  of 
Michigan  Avenue,  leaving  all  the  territory  between  Michigan  Ave- 
nue and  the  river  free,  will  make  possible  the  first  effective  step 
to  the  extension  southward  of  the  business  district  of  the  city. 

This  cannot  be  brought  about  except  as  each  individual  rail- 
road company  may  see  its  way  clear  to  do  so,  and  it  does  not  seem 
reasonable  to  suppose  that  the  Lake  Shore  and  Rock  Island  com- 
panies will  give  up  their  preferential  position  until  their  present 
station  becomes  inadequate.  In  the  meantime,  the  land  occupied 
may  become  so  valuable  that  its  use  for  a  railroad  station  would 
not  be.  warranted,  compared  with  a  sale  of  the  property  and  the 
rental  or  purchase  of  terminals  elsewhere. 

As  the  Illinois  Central  Eailroad  is  required  by  its  charter  to 
pay  to  the  State  of  Illinois  seven  per  cent,  of  its  gross  revenue, 
which  is  over  twenty  per  cent,  of  its  net  earnings  from  operation, 
all  rentals  for  terminals  received  by  it  will  accrue  to  the  advantage 


14 

of  citizens  of  Illinois,  including  Chicago,  which  is  to  that  extent 
an  indirect  partner.  As  the  land  set  aside  to  the  Illinois  Central 
can  be  used  only  for  railroad  purposes,  it  is  to  the  interest  of  the 
City  of  Chicago  not  only  to  favor  but  encourage  the  use  of  this 
property,  relieving  thereby  the  congestion  in  the  territory  now 
occupied  by  other  railroads  south  of  Van  Buren  Street  and  be- 
tween State  Street  and  the  Chicago  River. 

The  Illinois  Central  having  signified  its  willingness  to  make 
provision,  on  reasonable  terms,  in  its  new  station  for  the  passen- 
ger service  of  all  the  South  Side  roads,  and  with  its  main  lines 
extending  south  and  west  to  readily  intercept  the  traffic  of  these 
roads,  there  appears  to  be  no  substantial  reason  why  the  grouping 
of  the  passenger  terminals  of  the  South  Side  lines  at  12th  Street 
and  the  lake  front  is  not  only  feasible  and  practicable,  but  in  every 
way  advantageous  to  the  railways,  to  the  city,  and  to  the  com- 
munity in  general. 

The  elimination  in  the  course  of  time  of  three  of  the  existing 
passenger  terminals — the  Dearborn,  the  La  Salle,  and  the  Grand 
Central — would  dispense  with  unnecessary  stations  and  simplify 
the  railroad  situation  within  the  business  district. 

With  two  permanent  centers  for  the  development  of  the  rail- 
way passenger  terminals  of  the  city  thus  established;  the  one  at 
12th  Street  and  the  lake  front,  and  the  one  at  approximately  Canal 
and  Madison  Streets,  the  distance  between  these  terminals  would 
he  approximately  one  mile  east  and  west,  and  one  mile  north  and 
south ;  the  location  of  the  North  terminal  being  at  the  northwest 
corner  and  of  the  South  terminal  at  the  southeast  corner  of  a 
square  mile,  within  which  would  lie  the  central  business  district  of 
the  city. 

The  routes  of  rapid  street  communication  between  these  ter- 
minals would  be  on  the  easterly  and  northerly  course  via  Michigan 
and  Jackson  Boulevards  to  Canal  Street ;  and  on  the  southerly  and 


i5 

westerly  course  via  12th  and  Canal  Streets ;  thus  establishing  defi- 
nite lines  of  travel  for  the  accommodation  of  which  permanent 
street  improvements  suited  to  the  character  of  the  traffic  could 
advantageously  be  made.  By  the  southerly  and  westerly  route  the* 
time  saved  in  avoiding  the  delays  incident  to  the  congested  traffic 
of  the  business  district  would  make  that  route  the  shorter  one  in 
point  of  time. 

The  adjustment  of  the  routes  of  the  surface  traction  lines  to 
the  simplified  terminal  arrangements  of  the  railways  would  still 
further  improve  the  situation. 

To  ultimately  complete  the  system  of  passenger  inter-com- 
munication between  the  railways,  and  to  make  their  terminals  con- 
veniently accessible  from  the  outlying  portions  of  the  city  and 
suburbs,  a  connecting  railway  system  could  be  provided  of  dimen- 
sions sufficient  to  permit  the  movement  of  standard  railway  pas- 
senger equipment  directly  between  the  terminal  stations,  with 
surface  outlets  suitably  arranged  at  convenient  points  for  rail 
connection  with  the  tracks  of  the  terminal  stations.  Such  direct 
physical  connection  to  provide  for  the  expeditious  interchange  of 
passengers,  mail,  baggage,  express  and  sleeping  cars  between  the 
different  roads,  and  when  necessary,  the  movement  of  complete 
passenger  trains  from  one  road  to  another  on  opposite  sides  of 
the  city,  without  the  delays  incident  to  the  present  circuitous  meth- 
od of  making  interchange  over  the  surface  tracks  used  by  the  rail- 
ways for  freight,  switching  and  passenger  traffic. 

A  further  use  of  such  an  inner  circle  of  communication  be- 
tween the  railway  terminals  could  be  the  extension  of  the  suburban 
train  service  of  all  the  roads  of  the  city  to  include  the  circuit  of 
the  terminal  stations  and  of  the  business  district,  thus  putting 
every  part  of  the  city  and  its  suburbs  in  direct  connection  with 
every  railway  radiating  from  the  city. 

The  difficulties  in  the  way  of  practically  carrying  out  this  idea 


16 

at  the  present  time  are  so  apparent  that  it  is  suggested  only  as  a 
general  plan  that  would  seem  desirable  to  keep  in  view  and  grad- 
ually work  toward. 

Under  the  ordinance  submitted  by  the  Union  Station  Company 
to  the  City  Council  of  Chicago,  the  consideration  of  which  is  now 
pending,  it  is  proposed  to  construct  a  new  passenger  terminal  upon 
substantially  the  same  site  occupied  by  the  existing  terminal,  but 
so  greatly  expanded  in  all  its  functions  as  to  present  an  entirely 
new  undertaking,  nothing  but  the  site  of  the  old  terminal  being 
utilized  in  the  new. 

The  plan  of  the  new  Union  Station  terminal  provides  for  the 
station  building,  a  monumental  structure,  to  be  located  on  the  west 
side  of  Canal  Street,  occupying  the  entire  block  between  Canal, 
Clinton,  Adams  Streets,  and  Jackson  Boulevard,  with  a  passage 
the  full  width  of  the  block  under  Canal  Street  to  the  concourse  and 
train  shed,  between  Canal  Street  and  the  river. 

The  character  of  construction  to  be  of  the  highest  order;  the 
appointments  complete  and  arranged  in  a  manner  to  afford  the 
greatest  public  convenience. 

The  train  shed  to  be  2,430  feet  in  length,  with  a  width  at  the 
north  end  of  212  feet,  and  at  the  south  end  of  368  feet. 

The  plan  of  the  train  shed  provides  for  a  double  stub  layout 
of  tracks,  with  a  passenger  concourse  300  feet  wide,  extending 
entirely  across  the  train  shed  between  the  two  sets  of  station  tracks 
The  level  of  the  concourses  and  of  the  connecting  platforms  to  be 
upon  the  same  level  as  the  floors  of  the  cars.  East  of  the  train 
shed  and  outside  of  it  the  through  tracks  connect  the  north  and 
south  ends  of  the  terminal.  The  track  layout  at  the  north  end  will 
consist  of  ten  stub  tracks,  varying  in  length  from  980  feet  to  1,460 
feet,  aggregating  11,840  lineal  feet  available  for  trains,  with  four 
main  line  approach  tracks ;  at  the  south  end  15  stub  tracks,  varying 


17 

in  length  from  1,060  feet  to  1,410  feet,  aggregating  18,080  lineal 
feet  available  for  trains,  with  six  main  line  approach  tracks. 

The  area  of  the  new  station  and  its  tracks,  24.7  acres,  com- 
pared with  6.1  acres  of  the  present  station ;  the  new  site  exceeding 
in  area  the  old  by  402  per  cent. 

It  is  estimated  that  in  functional  activity  the  new  station  will 
have  four  times  the  capacity  of  the  old,  and  will  meet  the  require- 
ments of  increasing  traffic  for  many  years  to  come. 

A  particular  merit  of  the  design  of  this  station  is  the  arrange- 
ment of  the  train  shed  on  the  plan  of  stub  tracks,  with  a  broad 
passenger  concourse  and  platforms  all  on  a  level  with  the  car 
floors. 

This  plan  offers  to  the  public  the  most  simple  and  direct  meth- 
od of  approach  and  departure,  and  is  the  most  convenient  method 
by  which  passengers  can  go  to  and  from  trains  without  climbing 
stairs  or  using  long  ramps. 

A  serious  objection  to  through  or  loop  stations  is  the  incon- 
venience occasioned  to  the  public  by  the  use  of  narrow  passage  and 
stairways,  in  going  over  or  under  the  tracks  that  have  to  be  crossed, 
and  in  passing  to  and  from  the  different  levels  at  which  the  tracks 
and  waiting-rooms  in  such  stations  have  to  be  placed.  It  may  be 
that  in  the  course  of  time  the  necessity  for  intensive  development 
of  railway  facilities  will  compel  the  adoption  of  through  and  loop 
stations  for  railway  terminals,  notwithstanding  the  public  incon- 
venience that  will  result  therefrom,  but  until  that  course  becomes 
an  enforced  necessity  the  arrangement  of  tracks  as  a  stub  end 
terminal  is  preferable  from  the  standpoint  of  public  convenience. 

Among  the  different  plans  and  ideas  for  passenger  terminals 
that  have  been  submitted  for  my  consideration,  those  presented  by 
Mr.  F.  A.  Delano,  President  Wabash  Railroad;  Mr.  Jarvis  Hunt, 
architect;  Pond  &  Pond,  architects;  Guenzel  &  Drummond,  archi- 


18 

tects,  and  the  Chicago  Plan  Commission;  are  the  most  compre- 
hensive and  are  the  result  of  much  careful  study  and  thought. 

Mr.  Delano  favors  a  location  south  of  12th  Street  and  be- 
tween State  Street  and  the  Eiver  for  a  Union  Station,  or  a  group 
of  stations,  fronting  on  12th  Street,  without  advocating  any  special 
personal  plan  to  the  exclusion  of  all  others. 

Mr.  Hunt's  plan  involves  the  radical  changing  of  the  course 
of  the  Chicago  Eiver,  and  straightening  it  from  Van  Buren  Street 
to  18th  Street.  Upon  the  ground  thus  made  available  as  a  site, 
he  proposes  to  construct  a  grand  terminal  for  all  the  roads,  cover- 
ing the  area  between  12th  and  16th  Streets,  State  Street  and  the 
Eiver — approximately  one-half  mile  square,  with  tracks  upon  a 
level  above  and  below  the  streets.  The  track  plan  provides  for  a 
loop  system  of  train  movements,  with  a  drawbridge  across  the  river 
at  the  entrance  to  the  station  for  railways  approaching  the  city 
from  the  West  and  North. 

The  Pond  &  Pond  plan  provides  a  series  of  unit  stations  ex- 
tending in  a  north  and  south  line  west  of  the  river  from  Madison 
Street  as  far  as  may  be  needed. 

The  site  of  the  terminal  at  Madison  Street  occupies  all  of  the 
space  between  Clinton  Street  and  the  Eiver,  necessitating  the  va- 
cating of  Canal  Street  and  the  opening  of  a  new  street  along  the 
east  line  of  the  terminal  location. 

Each  of  the  unit  stations  is  a  composite  of  the  through  and 
loop  types,  with  tracks  upon  the  second  and  third  levels  above  the 
streets,  the  different  levels  being  connected  by  long  flights  of  stairs 
up  and  down  which  all  passengers  would  have  to  go  in  their  move- 
ments to  and  from  trains. 

The  Guenzel  and  Drummond  plan  provides  a  series  of  five 
unit  stations,  occupying  the  entire  block  between  Canal  Street 
and  Clinton  Street,  in  a  north  and  south  line,  from  Madison  to 
15th  Street. 


19 

Each  unit  station  is  of  the  through  type,  with  waiting-rooms 
and  tracks  on  four  high  levels  ahove  the  streets.  The  different 
levels  being  connected  by  long  narrow  stairways  between  the 
tracks,  up  and  down  which  all  passengers  would  have  to  go  in  their 
movements  to  and  from  trains. 

The  Chicago  Plan  Commission  proposes  a  location  south  of 
12th  Street  and  west  of  Canal  Street  for  the  West  Side  railroad 
companies,  using  the  Union  Station,  instead  of  building  a  new 
station  on  the  present  site. 

Monumental  buildings  of  imposing  design  are  characteristic 
of  each  of  these  plans,  while  the  track  layouts  are  indefinitely  sug- 
gestive, rather  than  the  carefully  worked  out  systems  required  for 
successful  railroad  operation. 

All  possess  some  ideas  of  merit,  and  the  public  should  appre- 
ciate the  time,  labor  and  expense  which  have  been  so  generously 
contributed  in  assisting  in  the  solution  of  the  terminal  problem,  by 
these  gentlemen. 

Considering  the  fact  that  as  a  condition  precedent  to  the  crea- 
tion of  any  Union  Station  plan  the  concurrence  of  all  the  railroads 
using  it  must  be  secured  in  addition  to  the  consent  of  The  City 
Council  of  Chicago,  and  considering  further  that  a  large  number 
of  the  railroads  interested  would  be  required  to  give  up  situations 
which  they  independently  control  and  which  are  considered  pref- 
erential situations,  also  considering  their  legal  rights;  it  would 
seem  impracticable  to  bring  about  any  joint  harmonious  action,  in 
the  near  future,  on  any  single  Union  Station  plan,  even  though  it 
might  be  a  desirable  one  of  itself. 

Ultimate  accomplishment  along  these  lines  would  be  a  matter 
of  years  of  negotiation  and  perhaps  litigation. 

It  is  reasonable  to  presume  that  in  the  meantime  the  present 
facilities  of  the  Dearborn  Street  Station,  the  Lake  Shore  and  Rock 
Island  Station,  and  the  Grand  Central  Station,  will  have  become 


20 

antiquated  and  outlived  their  usefulness,  and  that  the  railroads 
occupying  them  will  have  either  gravitated  to  the  Illinois  Central 
site  on  the  Lake  Front  south  of  12th  Street,  or  to  some  new  loca- 
tion south  of  12th  Street. 

Even  the  new  proposed  Union  Station  on  the  west  side  may- 
require  enlargement,  reconstruction  or  removal  during  the  next 
generation. 

The  solution  of  problems  of  this  character  requires  time,  pa- 
tience, broad  and  liberal  views  on  the  part  of  all  interested,  and 
must  be  worked  out  gradually  along  lines  of  least  resistance. 

Heretofore  in  most  of  the  large  cities  of  the  United  States,  few 
railroad  terminal  stations  have  been  adequate  for  the  necessities 
of  the  public  and  the  railroads  for  a  period  of  25  years ;  and  we 
have  no  assurance  that  the  new  large  stations  now  being  planned 
and  constructed,  or  those  recently  built,  will  show  any  better  rec- 
ord than  that  indicated  by  the  past. 

A  large  Union  Station  located  south  of  12th  Street  between 
State  Street  and  the  river,  even  if  the  river  could  be  straightened, 
which  could  not  be  brought  about  except  after  years  of  negotia- 
tion and  litigation,  would  in  a  few  years  probably  become  con- 
gested, and  the  problem  of  enlargement  be  one  of  difficulty,  in- 
convenience, and  expense. 

It  would  also  be  an  obstacle  to  future  growth  and  develop- 
ment of  the  city  southward,  probably  much  more  so  than  that 
now  caused  by  the  railroad  holdings  north  of  12th  Street.  It  is 
less  than  fifty  years  since  22d  Street  was  the  southern  limit  of 
the  city. 

In  the  event  of  any  or  all  of  the  South  Side  group  of  rail- 
roads not  being  able,  for  reasons  of  policy  or  for  any  cause,  to 
utilize  the  Lake  Front  terminal  south  of  12th  Street,  any  new 
station  facilities  should  be  confined  within  street  building  lines 
with  either  subway  or  elevated  approaches,  in  such  a  way  as  to 


21 

avoid  blocking  or  interfering  with  streets  or  thoroughfares,  even 
if  separate  stations  for  different  groups  of  railroads  were  ren- 
dered necessary ;  but  it  should  be  the  policy  of  the  city  to  enlarge, 
widen  or  extend  its  streets  and  thoroughfares  leading  to  the 
southward  and  not  to  permit  further  encroachment  thereon. 

While  the  writer  does  not  desire  to  burden  this  report  with 
long  arguments  of  a  technical  nature  as  to  the  question  of  the 
comparative  advantages  or  disadvantages  of  a  Central  Union 
Station  for  all  Chicago  railways,  as  against  independent  stations 
or  separate  groups  of  stations  situated  around  the  business  cen- 
ter, he  does  desire  to  state  that  he  cannot  see  the  advantage  of 
the  former  either  in  convenience  to  the  public  or  in  economy  or 
convenience  of  operation  to  the  railroads;  in  fact,  experience  in 
other  localities  would  seem  to  show,  as  far  as  the  railroads  are 
concerned,  an  increase  in  fixed  charges  and  expenses  of  opera- 
tion entirely  out  of  proportion  to  any  material  advantages  gained 
thereby. 

In  Chicago  a  vast  number  of  people  entering  or  leaving  the 
city  by  these  railroads  would  be  inconvenienced  thereby. 

The  traveling  public  passing  through  Chicago,  and  going 
from  one  railroad  to  another  not  now  using  the  same  stations,  is 
very  small,  being  about  two  per  cent,  of  the  total  number  using 
these  stations. 

The  business  interests  located  in  the  center  of  the  city  cer- 
tainly would  not  be  benefited  by  the  location  of  a  Union  Station, 
more  difficult  to  access  than  the  present  ones,  which  would  only 
add  to  the  convenience  of  non-Chicago  passengers,  to  the  in- 
convenience of  the  greater  number  desiring  to  do  business  within 
the  heart  of  the  city. 

Unless  a  Grand  Central  Union  Station  for  all  railroads  in 
Chicago  can  be  made  more  beautiful  and  attractive  than  several 
stations  occupied  by  separate  groups  of  railroads,  and  be  more  ac- 


22 

cessible  and  convenient  to  the  public;  occupy  less  space  and  by 
offering  new  quarters  to  the  railroads  enable  them  to  dispose  of 
present  holdings,  and  open  up  new  streets  and  territory  for  the 
expansion  of  business;  there  would  seem  to  be  no  object  in  its 
consideration  from  the  standpoint  of  the  public  interest. 

Unless  a  Central  Union  Station  would  enable  the  railroad 
companies  to  better  serve  the  public,  increase  their  passenger 
business,  reduce  their  operating  expenses,  or  increase  their  net 
earnings,  it  would  not  seem  advisable  from  a  practical  railroad 
point  of  view  for  any  railroad  to  give  up  a  satisfactory,  conveni- 
ent, preferential  location. 

I  cannot  see  how  a  single  Union  Station,  or  a  continuous 
group  of  adjoining  stations  lined  up  south  of  12th  Street,  could 
be  convenient  to  that  large  part  of  the  traveling  public — be  they 
through,  local,  or  suburban  passengers — which  desires  access  to 
the  business  center  of  Chicago. 

If  the  present  suburban  stations  are  maintained,  there  is  still 
less  reason  for  a  single  Union  Station  south  of  12th  Street. 

Nor  can  I  see  where  or  how  such  a  station  would  relieve  the 
present  situation,  unless  the  suburban  passenger  business  was 
provided  for  in  some  manner  at  least  as  satisfactory  if  not  more 
so  than  at  present. 

From  a  practical  railroad  point  of  view,  a  single  Union  Sta- 
tion would  increase  congestion,  be  more  unsatisfactory  and  incon- 
venient to  passengers,  and  more  expensive  to  the  railroad  com- 
panies, without  enough  compensating  features  to  justify  its  use. 


RECOMMENDATION. 

It  is  my  recommendation  that  an  ordinance  for  a  Union 
Passenger  Terminal  at  the  location  proposed  by  the  Union 
Station  Company,  be  granted. 


24 


PENNSYLVANIA  FREIGHT  FACILITIES. 

The  granting  of  the  Union  Station  ordinance,  however,  does 
not  insure  the  construction  of  the  passenger  terminal,  for  the 
reason  that  the  site  of  the  proposed  passenger  terminal  overlaps 
the  freight  facilities  of  the  Pennsylvania,  the  Burlington  and  the 
Alton  roads. 

The  ground  occupied  by  these  freight  facilities  cannot  be 
vacated  until  other  locations  and  facilities  are  provided  to  take 
the  place  of  those  to  be  given  up;  and  to  meet,  in  part,  this  sit- 
uation, the  Pennsylvania  Company,  operating  the  Pittsburgh, 
Ft.  Wayne  &  Chicago  Eailway,  has  submitted  for  your  considera- 
tion an  ordinance  granting  to  that  Company  the  rights  and  privil- 
eges necessary  for  the  construction  of  a  new  freight  terminal  pro* 
posed  to  be  located  fronting  north  on  West  Van  Buren  Street,  cov- 
ering the  entire  block  between  Jefferson  and  Desplaines  Streets, 
aud  extending  southward  with  buildings  and  team  tracks  to  Tay- 
lor Street,  beyond  which  there  are  further  extensions  for  a  dou- 
ble line  of  elevated  approach  tracks  to  a  connection  with  the  main 
line  of  the  Pittsburgh,  Ft.  Wayne  &  Chicago  By.  right-of-way  at 
its  crossing  of  the  Chicago  Kiver. 

The  area  proposed  to  be  used  for  this  freight  terminal  is  a 
space  300  feet  in  width,  extending  southward  from  Van  Buren 
Street  to  Ewing  Street,  1920  feet.  Beyond  Ewing  Street  south- 
ward, the  space  to  be  occupied  consists  of  a  strip  about  100  feet 
in  width,  to  serve  as  a  right-of-way  for  the  necessary  approach 
tracks. 

From  a  point  in  Stewart  Avenue  between  West  21st  Street 
and  West  22d  Street,  northward  and  through  the  freight  buildings 
to  be  erected  between  Ewing  and  Van  Buren  Streets,  it  is  pro- 
posed to  construct  elevated  approach  tracks  crossing  all  the  in- 


25 

tervening  streets  and  thus  make  a  rail  connection  from  the  main 
line  tracks  to  the  freight  houses. 

The  main  freight  building  to  be  a  steel  and  masonry  structure 
two  stories  in  height,  300  feet  in  width,  and  800  feet  in  length, 
extending  from  Van  Buren  Street  to  Harrison  Street,  with  tracks 
upon  two  levels.  The  lower  level  below  the  surface  of  the  adjoin- 
ing streets  for  outbound  freight,  and  an  upper  level  above  the 
surface  of  the  streets  for  inbound  freight. 

Between  the  two  track  levels  teams  would  enter  the  building 
through  doorways  on  Jefferson  Street  and  Desplaines  Street,  the 
interior  driveways  running  transversely  of  the  building  upon  the 
same  level  as  the  adjoining  streets. 

All  of  the  intermediate  cross  streets  extend  through  the  build- 
ing, and  thus  maintain  the  continuity  of  the  thoroughfares  for 
street  traffic. 

Within  the  building  freight  would  be  received  and  delivered  at 
platforms,  the  inbound  freight  being  lowered  from  the  cars  to  the 
teams,  and  the  outbound  freight  lowered  from  the  teams  or  trucks 
to  the  cars. 

Under  this  arrangement  the  plan  of  handling  freight  is  in- 
tensively developed  to  the  extent  that  both  inbound  and  outbound 
freight  would  be  handled  within  the  same  area  on  different  levels. 
This  method  of  handling  freight  is  an  advance  over  any  previous 
system  used  by  the  railways  in  Chicago,  and  will  effect  a  con- 
siderable economy  in  the  space  used  for  this  purpose. 

The  facility  with  which  teams  or  trucks  can  approach  the 
freight  platforms  and  depart  therefrom  at  the  street  level  on  all 
sides  of  the  building,  and  the  interior  arrangements  for  handling 
the  freight,  are  to  be  commended  as  progressive  and  advanced 
practice. 

Between  Harrison  Street  and  Polk  Street  and  extending  the 
entire  width  of  the  block  from  Jefferson  Street  to  Desplaines 


26 

Street,  the  team  tracks  would  be  located  upon  an  easy  incline,  con- 
necting at  the  upper  end  with  the  elevated  approach  tracks  at  Polk 
Street,  and  at  the  lower  end  with  the  street  level  at  Harrison 
Street.  South  of  the  team  tracks  would  be  located  freight  ware- 
houses extending  from  Polk  to  Taylor  Streets  and  covering  the 
block  between  Jefferson  Street  and  Desplaines  Street. 

The  general  plan  of  this  freight  terminal  is  excellent.  The 
location  of  the  main  freight  building,  fronting  on  Van  Buren 
Street  and  extending  south  to  Harrison  Street,  is  objectionable 
because  of  the  obstruction  it  will  offer  to  the  proposed  opening 
of  Congress  Street  midway  of  the  block  between  Van  Buren  Street 
and  Harrison  Street. 

It  is  apparent  to  any  observer  of  the  traffic  conditions  of  the 
streets  in  the  central  business  district  of  Chicago  that  relief  from 
the  congestion  now  prevailing  can  be  brought  about  only  by  giv- 
ing opportunity  for  the  expansion  of  the  business  district  west- 
ward as  well  as  southward,  and  to  this  end  the  improvement  pro- 
posed by  the  Chicago  Plan  Commission  of  opening  Congress 
Street  through  to  the  West  Side  as  a  wide  avenue  of  traffic  is  a 
consideration  of  importance  to  the  ultimate  development  of  a 
westward  movement  of  business. 

The  block  between  Van  Buren  Street  and  Harrison  Street  is 
substantially  800  feet  in  length,  and  because  of  its  unusual  length 
forms  an  impassible  barrier  to  westward  progress.  The  opening 
through  this  block  by  the  extension  of  Congress  Street  will  not 
only  give  a  needed  thoroughfare  upon  a  central  line  of  develop- 
ment, but  with  Van  Buren  Street  on  the  north  and  Harrison 
Street  on  the  south,  both  closely  adjoining,  will  establish  a  triple 
thoroughfare  within  a  spread  of  800  feet,  which,  with  the  mod- 
erate widening  of  Van  Buren  Street  and  Harrison  Street  for 
heavy  traffic,  and  the  development  of  Congress  Street  for  light 


27 

traffic,  will  provide  the  opportunity  for  a  westward  business  move- 
ment such  as  may  at  some  future  time  become  a  necessity. 

The  greater  portion  of  the  outbound  freight  business  received 
by  the  railways  through  their  downtown  freight  houses  and  team 
tracks  originates  within  the  central  business  district  of  the  city, 
and  the  inbound  business  is  largely  distributed  in  the  same  ter- 
ritory, resulting  in  a  dense  traffic  upon  the  streets.  This  traffic 
makes  use  of  the  streets  leading  most  directly  to  the  entrances 
to  the  various  yards  and  freight  houses  of  the  different  roads,  and 
being  handled  by  slow  moving  teams  results  in  a  great  deal  of  con- 
gestion, particularly  at  street  intersections. 

It  is  therefore  necessary  that  any  plan  looking  to  the  im- 
provement of  these  street  conditions  should  consider  the  possi- 
bilities of  the  dispersion  of  this  traffic  by  bringing  more  streets 
into  use  for  its  movement,  and  lessening  the  concentration  now 
existing. 

At  the  present  time  substantially  all  of  the  traffic  to  and  from 
the  freight  terminal  of  the  Pennsylvania  Company  and  the  cen- 
tral business  district  crosses  the  river  on  the  Madison  Street 
bridge  and  the  Van  Buren  Street  bridge,  for  the  reason  that  the 
main  driveways  leading  down  to  the  freight  houses  and  tracks  of 
that  company  turn  off  from  Madison  and  Van  Buren  Streets  close 
to  the  bridges  and  can  be  reached  in  no  other  direct  way  while  the 
terminal  remains  in  the  present  location,  between  Canal  Street 
and  the  river. 

The  Pennsylvania  Company,  in  locating  its  proposed  new 
freight  terminal  west  of  Canal  Street,  evidently  had  in  view  the 
redistribution  of  this  traffic  by  the  use  of  Canal  and  Clinton 
Streets  as  the  main  thoroughfares,  tributary  to  which  would  be 
the  bridges  at  Lake,  Eandolph,  Washington,  Madison,  Adams, 
Jackson,  Van  Buren  and  Harrison  Streets,  thus  giving  immediate 


28. 

relief  to  the  existing  congestion  from  the  South  Side  by  spreading 
the  traffic  over  eight  bridges  instead  of  two. 

With  the  increased  freight  traffic  thus  thrown  on  Canal  Street 
there  will  be  a  much  heavier  use  of  the  street  than  ever  before,  as 
it  may  become  the  main  thoroughfare  for  heavy  north  and  south 
traffic  from  not  only  the  South  Side,  but  as  well  from  the  North 
Side,  and  will  also  carry  a  substantial  portion  of  West  Side  traf- 
fic to  the  railway  freight  terminals  and  warehouses  that  may  in 
time  line  Canal  Street  on  both  sides  from  Harrison  Street  to  15th 
Street. 

To  meet  this  situation  and  at  the  same  time  provide  an  ade- 
quate and  suitable  thoroughfare  for  the  passenger  traffic  to  and 
from  the  Union  Station,  Canal  Street  should  be  widened  to  100 
feet  from  12th  Street  to  Harrison  Street,  and  if  possible  further 
north,  by  extending  the  street  eastwardly  20  feet  over  railroad 
property  and  supporting  it  over  the  tracks  below. 

Canal  Street  should  also  be  extended  in  a  northeasterly  di- 
rection from  near  its  intersection  with  Lake  Street  to  a  connec- 
tion with  the  North  Side,  providing  a  direct  additional  connection 
between  the  North  and  West  Side  sections  of  the  city. 

It  would  be  advisable  to  reconstruct  the  street  upon  two  lev- 
els, the  upper  level  for  rapidly  moving  through  traffic,  and  the 
lower  level  for  slow  moving  local  traffic.  The  through  cross 
streets  to  connect  with  the  upper  level  and  the  short  cross  streets 
to  connect  with  the  lower  level. 

With  these  provisions  for  improved  street  traffic,  the  location 
of  the  Pennsylvania  freight  terminal  west  of  Canal  Street  will 
be  of  advantage  by  relieving  the  congestion  in  the  freight  yards  as 
well  as  the  streets,  and  the  capacity  for  greatly  increased  business 
which  the  new  terminal  will  afford  will  be  of  advantage  to  the 
mercantile  and  industrial  interests  as  well  as  to  the  railroad. 


29 

In  addition  to  the  improvement  of  Canal  Street  I  would  rec- 
ommend the  extension  of  Monroe  Street  across  the  river,  making 
it  available  as  an  additional  continuous  avenue  to  the  West  Side. 

I  would  also  recommend  the  consideration  of  the  widening 
of  Harrison  Street  in  the  near  future,  by  increasing  the  width 
of  the  roadway  to  the  present  building  line  on  each  side  of  the 
street,  and  adding  to  the  present  street  width  sufficient  space  on 
each  side  for  the  necessary  sidewalks. 

This  can  be  done  in  a  comparatively  economical  manner  by 
having  the  first  stories  of  the  more  expensive  buildings  cut  back 
the  width  of  the  new  sidewalk,  thus  forming  an  arcade  under  the 
second  story. 

The  writer  does  not  claim  any  originality  for  the  suggestion 
of  this  idea,  as  it  is  in  use  in  several  large  cities, — a  street  in 
Berne,  Switzerland,  being  a  striking  example  of  such  treatment, 
and  it  has  been  previously  recommended  for  the  treatment  of  cer- 
tain congested  portions  of  San  Francisco,  by  Mr.  Bion  J.  Arnold. 

It  will  therefore  be  of  general  advantage  and  benefit  to  the 
business  interests  of  the  city  and  the  railroad  that  the  location 
of  the  new  Pennsylvania  freight  terminal  west  of  Canal  Street  be 
approved,  provided  the  plan  is  amended  to  eliminate  the  objec- 
tions which  have  been  made  to  it  and  which  can  be  accomplished 
as  follows: 

The  north  line  of  the  main  freight  building  which  it  is  pro- 
posed to  locate  on  Van  Buren  Street  can  be  set  back  from  Van 
Buren  Street  to  Harrison  Street,  and  no  portion  of  the  proposed 
terminal  should  be  permitted  to  extend  north  of  the  south  line  of 
West  Harrison  Street  widened,  excepting  such  utilization  of  the 
property  between  Van  Buren  Street  and  Harrison  Street  as  can 
be  made  below  the  level  of  the  street  grades,  and  without  inter- 
fering with  the  future  extension  of  Congress  Street.  This  can  be 
done  by  the  railroad  company  without  impairing  the  integrity  or 


30 

capacity  of  its  terminal  improvements  by  extending  the  freight 
building  southward  from  Harrison  Street  to  Polk  Street,  and  by 
using  the  block  from  Polk  Street  to  Taylor  Street  for  its  team 
tracks,  in  addition  to  such  use  as  may  be  made  below  street  grade 
of  the  block  between  Harrison  and  Van  Buren  Streets,  as  before 
mentioned.  The  two  blocks  thus  to  be  occupied,  from  Harrison 
Street  south  to  Taylor  Street  will  be  equal  in  length  to  the  two 
blocks — Van  Buren  Street  to  Polk  Street,  proposed  in  the  original 
plan,  and  the  capacity  of  the  terminal  in  this  location  can  be  fully 
maintained. 

By  making  this  change  of  location,  the  menace  to  the  proposed 
Congress  Street  extension  of  the  Chicago  Plan  Commission  and 
to  the  widening  of  Van  Buren  Street  and  Harrison  Street  will 
be  removed,  leaving  the  way  clear  for  the  street  improvements 
leading  to  the  proposed  Civic  Center  on  the  West  Side. 

For  the  proposed  elevated  structure  to  carry  the  freight  ap- 
proach tracks  from  21st  Street  and  Stewart  Avenue  northward  to 
Taylor  Street  between  Jefferson  and  Desplaines  Streets,  de- 
pressed tracks  should  be  substituted  west  of  the  Chicago  River 
at  a  level  that  will  pass  under  all  of  the  intervening  streets.  In 
fairness  to  the  railroad  company  interested  it  must  be  admitted 
however  that  a  depressed  approach  will  be  more  expensive  to 
operate,  on  account  of  possible  increased  curvature  expense  and 
delay  due  to  removal  of  snow,  ice  and  drainage,  than  elevated  ap- 
proaches, and  the  team  tracks  will  be  on  such  a  slope  as  to  require 
loaded  trucks  and  wagons  carrying  city  inbound  freight  to  be 
hauled  up  grade  instead  of  down  grade,  as  in  the  original  plans 
submitted  by  the  railroad  company.  Any  disadvantage  to  the  rail- 
road company  or  shippers  that  may  be  caused  by  this  subsurface 
approach  is  their  contribution  towards  the  future  appearance  of 
the  city,  and  the  prevention  of  a  structure  which  it  is  considered 
will  be  unsightly  to  view  and  obstructive  to  the  development  of  the 


31 

West  Side.  However,  this  change  in  track  arrangement  is  a  feasi- 
ble one,  and  in  the  interests  of  the  city  should  be  required  of  the 
railroad  company. 

At  a  point  between  Taylor  Street  and  Polk  Street  it  will  be 
necessary,  with  a  depressed  approach,  to  begin  the  separation  of 
the  grades  of  the  tracks  running  to  the  upper  and  lower  levels  of 
the  freight  buildings,  the  tracks  to  the  upper  level  ascending  on 
a  grade  and  fanning  out  as  they  cross  Polk  Street,  with  proper 
head  room,  to  enter  and  run  through  the  main  freight  building 
from  Polk  Street  to  Harrison  Street.  The  fanning  out  or  spread- 
ing of  the  house  tracks  as  they  cross  Polk  Street  overhead,  is  un- 
avoidable, as  it  is  an  arrangement  necessary  to  suit  the  unloading 
platforms  of  the  upper  level  within  the  building.  It  is  therefore 
necessary  that  this  arrangement  of  overhead  tracks  be  made,  as 
otherwise  it  would  be  impossible  to  accomplish  the  intensive  de- 
velopment of  the  property  which  is  so  much  to  be  desired.  With 
this  exception  all  of  the  overhead  crossings  of  streets  by  the  ap- 
proach tracks  to  the  proposed  freight  terminal  can  be  eliminated 
and  the  objectionable  features  of  this  important  railroad  improve- 
ment reduced  to  a  minimum.  While  this  plan  may  necessitate  the 
vacation  of  several  short  streets  and  alleys  in  the  block  to  be 
actually  occupied  by  the  freight  houses  and  team  tracks,  no 
through  street  or  thoroughfare  will  be  blocked. 


RECOMMENDATION. 

It  is  my  recommendation  in  respect  of  the  proposed 
freight  terminal  of  the  Pennsylvania  Company,  that  the 
plans  relating  to  the  elevated  approach  tracks  and  the  lo- 
cation of  the  main  freight  building  be  modified  as  herein 
suggested,  and  the  ordinance,  when  amended  to  conform 
to  the  changes  specified,  be  granted. 


34 


GENERAL  FREIGHT  FACILITIES. 

In  the  brief  time  at  my  disposal,  to  meet  your  requirements 
of  an  early  report  on  the  proposed  new  passenger  terminal  of  the 
Union  Station  Company  and  the  new  freight  terminal  of  the  Penn- 
sylvania Company,  I  have  of  necessity  been  forced  to  confine  my 
study  of  the  subject  to  the  most  salient  features  of  the  general 
railway  situation  of  the  city,  and  to  the  street  conditions  affecting 
their  use.  The  consideration  of  detail,  however  illuminating  it 
might  be  to  the  subject,  has  been  omitted  from  this  report. 

The  larger  questions  relating  to  a  possible  change  in  the  lo- 
cation of  the  freight  facilities  of  the  railways,  whose  freight 
houses  and  team  tracks  are  now  located  on  the  South  Side  of  the 
city,  north  of  12th  Street,  must  be  left  for  consideration  to  a  more 
extended  investigation  than  I  have  had  an  opportunity  of  making 
of  this  subject,  although  I  believe  this  problem  can  be  worked 
out  along  lines  that  will  relieve  the  present  congestion,  to  the  ad- 
vantage of  both  the  railroads  and  the  public. 

The  question  of  some  improved  method  of  handling  the  enor- 
mous tonnage  of  freight  which  is  shipped  in  and  shipped  out  of 
Chicago  is  a  very  important  one,  when  it  is  considered  that  this 
tonnage  is  largely  in  excess  of  the  freight  shipped  into  Chicago 
for  consumption  in  the  city.  The  "shipped-in  shipped-out" 
freight  is  now  largely  handled  through  the  streets  of  the  business 
district  in  its  movement  from  the  railways  to  warehouses  on  its 
inward  journey,  and  is  again  hauled  through  the  streets  from 
warehouses  to  the  railway  stations  on  its  outward  journey;  much 
of  it  in  the  original  form  in  which  it  was  received.  A  great  deal 
of  the  congestion  of  the  streets  in  the  business  district  of  the  city 
is  due  to  the  handling  of  freight  which  is  foreign  to  the  city,  and 
which  could  with  advantage  to  the  community  be  handled  outside 
of  the  business  district. 


35 

The  establishment  outside  of  the  city  limits  of  a  clearing- 
house for  the  handling  of  less-than-carload  freight,  in  connection 
with  universal  freight-houses  located  conveniently  within  the  city, 
is  an  advanced  method  of  handling  freight,  which  is  worthy  of  the 
most  careful  investigation,  as  it  has  possibilities  of  great  relief  to 
the  traffic  upon  the  city  streets. 

With  a  definite  trend  southward  of  the  business  district  of  the 
city,  and  the  consequent  advancing  real  estate  values,  it  would  ap- 
pear reasonable  that  the  enhanced  value  of  the  land  released  from 
railroad  use  north  of  12th  Street  on  the  South  Side  that  would  re- 
sult from  the  opportunity  to  make  use  of  such  land  for  the  con- 
struction of  commercial  and  office  buildings,  would  yield  returns 
more  than  sufficient  to  cover  the  expense  to  the  railroads  of  mov- 
ing the  freight  facilities  now  there  to  new  locations  and  adopt- 
ing improved  methods  of  freight  operation. 

How  this  can  advantageously  be  accomplished  will  require 
much  careful  study  and  extended  investigation,  but  the  benefits 
that  would  accrue  to  the  city  by  the  vacation  of  all  or  even  part 
of  the  railroad  holdings  used  for  freight  purposes  on  the  South 
Side  between  State  Street  and  the  Eiver,  in  the  opportunity  it 
would  give  for  the  opening  up  of  adequate  thoroughfares  and  the 
expansion  of  the  central  business  district,  would  justify  a  most 
comprehensive  investigation. 

I  have  not  attempted  to  burden  this  report  with  a  mass  of 
statistics  or  long  drawn  out  arguments,  as  from  the  conferences  I 
have  had  with  your  Chairman  and  the  members  of  your  Commit- 
tee I  judge  that  the  essential  features  on  which  you  desire  my  rec- 
ommendations are  those  having  a  bearing,  either  directly  or  in- 
directly, on  the  action  which  your  Committee  should  deem  it  ad- 
visable to  take  in  regard  to  the  ordinance  pending  before  the  City 
Council  and  under  consideration  by  your  Committee,  providing 


36 

for  the  erection  of  a  new  Union  Station  for  the  Pennsylvania,  the 
Chicago,  Burlington  &  Quincy,  the  Chicago,  Milwaukee  &  St. 
Paul,  and  the  Chicago  &  Alton  Railways,  on  the  west  side  of  the 
Chicago  River  between  Madison  and  Van  Bnren  Streets. 

The  conclusions  which  are  embodied  in  my  recommendations 
to  you  contained  in  this  report  will,  I  hope,  give  your  Committee 
the  information  desired  in  connection  with  the  consideration  of 
the  pending  ordinances.  To  continue  the  investigation  further  or 
to  attempt  to  solve  in  detail  the  problems  that  confront  the  city 
and  the  railroads  now  owning  or  occupying  terminals  south  of 
Van  Buren  Street  and  between  State  Street  and  the  Chicago  River, 
will  require  a  more  extended  investigation  and  take  more  time  and 
funds  than  are  now  at  the  disposal  of  your  Committee. 

Respectfully  submitted, 

John  F.  Wallace. 

Chicago  October  20,  1913. 


UNIVERSITY  OF  CALIFORNIA  LIBRARY, 
BERKELEY 


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WAR  6  1921 


20m-ll,'20 


Gaylord  Bros. 

Makers 


Syracuse 


N.Y. 


PAT.  JAN.  21, 1908 


3V3864 


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